为什么电力政策总是捉襟见肘?

Why is Power Policy Always Conflicting?

新时期,中国能源政策需要兼顾增长、绿色和共享多重目标。能源政策,尤其是电力政策在实践过程中不可避免地出现相互冲突的问题。本文以电力价格为切入点,剖析电价的决定因素及其背后的一系列政策组合,包括能源品市场供需及相关政策。进一步从经济学视角出发,结合能源品负外部性、公共服务以及寡头和自然垄断特征之间的相互交叉性,讨论其对应的电力政策之间存在的相互冲突、相互抵消的问题。我们发现电力政策冲突的背后,既有政策本身的不合理性,也有缺乏通盘考虑的因素,还有多重能源特性不兼容的硬约束。本文认为化解电力政策之间冲突的有效方案是:推动区域电力市场建设、坚持产业政策"谁请客谁买单"、促进电改与环境政策的融合、逐步取消交叉补贴以及推进创新普遍服务模式。

In the new era, the energy policy in China should take growth, green and sharing development into account. Thus, the effects are inevitably offset in the implementation of energy policies, especially electricity policies. In this paper, by focusing on the electricity price, we analyze the determinants of electricity price and a series of policy combinations behind it, including the supply and demand of energy products market and related policies. Further, from the perspective of economics and based on the intersection of characteristics of energy product like negative externality, public services, oligopoly and monopoly market structure, we discuss the reasons and mechanisms of policy conflicts. We find that conflicts of electricity policy derive from the irrationality of policy itself, the lack of overall consideration of central government and hard constraints of incompatibility of multiple characteristic of energy. Finally, we offer policy suggestions for confronting the policy conflicts: promoting the establishment of regional electricity markets; defining the payer of industrial policies; integrating the reform of electric power system and environment policy; gradually cancelling cross-subsidization; innovating universal service model.